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CONFIDENTIAL
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ACTION 10-19
USUN N 02899 01 OF 03 1500032
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/054W
CB2545 150004Z /38
O 142331Z JUN 93
FM USMISSION USUN NEW YORK
TO AMEMBASSY PARIS IMMEDIATE
SECSTATE WASHDC IMMEDIATE 7408
INFO AMEMBASSY KIGALI IMMEDIATE
AMEMBASSY DAR ES SALAAM PRIORITY
AMEMBASSY KAMPALA PRIORITY
AMEMBASSY BUJUMBURA
SECDEF WASHDC
USCINCEUR VAIHINGEN GE
UN SECURITY COUNCIL COLLECTIVE
AMEMBASSY NAIROBI
AMEMBASSY BRUSSELS
AMEMBASSY ADDIS ABABA
WHITEHOUSE WASHDC
JOINT STAFF WASHDC
C O N F I D E N T I A L SECTION 01 OF 03 USUN NEW YORK 002899
STATE FOR IO/UNP, AF/C AND AF/RA;
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WHITEHOUSE PASS TO NSC;
JOINT STAFF FOR CHAIRMAN, DIR JS, J5
E.0.12356: DECL:6/04/98
TAGS: MARR, PREL, MOPS, UN, RW, UG
SUBJECT: US/FRENCH MEETING ON RWANDAN BORDER FORCE
1.
CONFIDENTIAL - ENTIRE TEXT.
2. SUMMARY: A TWO-HOUR MEETING IN NEW YORK JUNE 11
BETWEEN DELEGATIONS FROM PARIS AND WASHINGTON CLEARED UP
UNITED STATES DEPARTMENT OF STATE
REVIEW AUTHORITY: HARMON E KIRBY
DATE/CASE ID: 02 APR 2008 200103014
UNCLASSIFIED
UNCLASSIFIED
MUCH OF THE CONFUSION AND CONTROVERSY OVER THE MANDATE
OF A UN OBSERVER FORCE ON THE UGANDA/RWANDA BORDER. THE
MANDATE WILL BE TO OBSERVE THE RWANDA/UGANDA BORDER AND
VERIFY WHETHER WEAPONS AND AMMUNITION ARE CROSSING ALONG
ROADS AND TRACKS THAT CAN ACCOMMODATE VEHICLES. MOBILE
PATROLS WILL BE DEPLOYED ONLY IF THE FORCE COMMANDER
DEEMS THEM SAFE, AND THEY WILL NOT ATTEMPT TO STOP
TRUCKS FOR INSPECTION. HELICOPTERS WILL BE USED
PRIMARILY FOR MEDEVACS, RESUPPLY AND LOGISTICS SUPPORT.
A MEMORANDUM OF UNDERSTANDING AND STATUS OF FORCES
AGREEMENT WITH THE UGANDANS SPELLING OUT THEIR
COOPERATIVE ROLE MUST BE IN PLACE PRIOR TO DEPLOYMENT OF
THE UN FORCE. USUN AND FMUN POLOFFS WILL JOINTLY CONVEY
THE CONCLUSIONS AND CONCERNS EXPRESSED IN THE MEETING TO
APPROPRIATE UN PEACEKEEPING AND MILITARY OFFICIALS EARLY
NEXT WEEK. END SUMMARY.
3. THE U.S. AND FRANCE SENT DELEGATIONS FROM THEIR
RESPECTIVE CAPITALS TO NEW YORK TO HAMMER OUT AN
UNDERSTANDING ON THE NATURE OF THE PROPOSED OBSERVER
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FORCE ON THE RWANDA/UGANDA BORDER. U.S. PARTICIPANTS
WERE AF/C OFFICE DIRECTOR AMB. BOB PRINGLE, DOD/OSD/ISA
LT. COL. MIKE HARVIN, JCS MAJOR PHIL DAVIS, IO/UNP
DEPUTY OFFICE DIRECTOR FOR PEACEKEEPING BOB LOFTIS,
AF/RA POLMIL ADVISER LT. COL. TONY MARLEY, RWANDA
DESKOFF FULLER, USUN MILAD MAJ. NAUGHTON, AND USUN
POLOFF SHESTACK (NOTETAKER). FRENCH PARTICIPANTS WERE
FOREIGN MINISTRY DEPUTY CHIEF OF DEPARTMENT FOR AFRICA
CATHERINE BOIVINEAU, MILITARY STAFF COL. DELORT, EMBASSY
MILATT BRIG GEN FAUPIN, FORMIN OFFICE OF UN AFFAIRS
ADVISER CLAIRE LIGNIERES, FMUN COUNSELOR SYLVIE BERMANN,
AND FMUN DEPPERMREP LADSOUS (BRIEFLY).
4. MUCH OF THE DISCUSSION CENTERED AROUND THE MANDATE
OF THE OBSERVER GROUP, WITH THE FRENCH ARGUING THAT THEY
SHOULD HAVE SOME LIMITED ABILITY TO "ASK" VEHICLES TO
STOP FOR INSPECTION EVEN WHEN NO UGANDAN AUTHORITIES
WERE PRESENT. THE U.S. SIDE NOTED THAT THIS WOULD GIVE
THE UN RESPONSIBILITY FOR POLICING THE BORDER WITHOUT
THE AUTHORITY OR MEANS TO DO SO. AND IN ANY EVENT, THE
UN SHOULD NOT ACCEPT SUCH A DELEGATION OF RESPONSIBILITY
FROM THE UGANDANS. BY THE END OF THE DISCUSSION, THE
FRENCH AGREED THAT THE MANDATE OF THE OBSERVERS WOULD BE
TO OBSERVE THE RWANDA/UGANDA BORDER AND VERIFY WHETHER
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WEAPONS AND AMMUNITION ARE CROSSING ALONG ROADS AND
TRACKS THAT CAN ACCOMMODATE VEHICLES.
5. THREE OTHER MAJOR AREAS OF CONTENTION WERE
ADDRESSED: FOOT PATROLS, HELICOPTER PATROLS, AND THE
ROLE OF THE UGANDANS. ON ALL THREE POINTS, THE FRENCH
EVENTUALLY CAME AROUND TO THE USG POINT OF VIEW. AFTER
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MUCH DISCUSSION, THE FRENCH BACKED OFF INSISTING ON
HAVING SYSTEMATIC FOOT AND HELICOPTER PATROLS, LEAVING
SUCH PATROLS UP TO THE DISCRETION OF THE FORCE
COMMANDER. THEY MORE READILY AGREED THAT THE EXTENT OF
THE ROLE OF THE UGANDANS IN STOPPING AND SEARCHING
VEHICLES SHOULD BE NAILED DOWN PRIOR TO DEPLOYMENT OF
ANY UN OBSERVERS IN A MEMORANDUM OF UNDERSTANDING
(MOU). THEY AGREED WITH US THAT A STATUS OF FORCES
AGREEMENT (SOFA) MUST ALSO BE NEGOTIATED PRIOR TO
DEPLOYMENT OF THE OBSERVERS. BOTH SIDES AGREED THAT A
READ-OUT OF THE MEETING
, AND CLARIFICATION OF THE FRENCH
AND U.S. PERCEPTION OF HOW THE UN SHOULD CARRY OUT THE
MISSION, WOULD BE JOINTLY CONVEYED TO UN U/SYG KOFI
ANNAN'S AND UN MILAD GEN. BARIL'S OFFICES BY USUN AND
FMUN POLOFFS WHO ATTENDED THE MEETING, ACCOMPANIED BY
MILADS FROM BOTH MISSIONS.
FOOT PATROLS
6. COL. DELORT CLARIFIED THAT THE FRENCH DID NOT HAVE
IN MIND JUNGLE COMBAT FOOT PATROLS, BUT RATHER VEHICLE
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ACTION 10-19
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INFO LOG-00 AF-01
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OASY-00 DOEE-00
HA-09
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/054W
CB254F 150005Z /38
O 142331Z JUN 93
FM USMISSION USUN NEW YORK
TO AMEMBASSY PARIS IMMEDIATE
SECSTATE WASHDC IMMEDIATE 7409
INFO AMEMBASSY KIGALI IMMEDIATE
AMEMBASSY DAR ES SALAAM PRIORITY
AMEMBASSY KAMPALA PRIORITY
AMEMBASSY BUJUMBURA
SECDEF WASHDC
USCINCEUR VAIHINGEN GE
UN SECURITY COUNCIL COLLECTIVE
AMEMBASSY NAIROBI
AMEMBASSY BRUSSELS
AMEMBASSY ADDIS ABABA
WHITEHOUSE WASHDC
JOINT STAFF WASHDC
C O N F I D E N T I A L SECTION 02 OF 03 USUN NEW YORK 002899
STATE FOR IO/UNP, AF/C AND AF/RA;
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USUN N 02899 02 OF 03 150004Z
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WHITEHOUSE PASS TO NSC;
JOINT STAFF FOR CHAIRMAN, DIR JS, J5
E.0.12356: DECL:6/04/98
TAGS: MAAR, PREL, MOPS, UN, RW, UG
SUBJECT: US/FRENCH MEETING ON RWANDAN BORDER FORCE
PATROLS TO CHECK FOR UNUSUAL MOVEMENT ALONG ROADS AND
TRACKS ("PISTES") THAT CAN ACCOMMODATE VEHICLES. (FYI,
MANY OF THESE "PISTES" WILL BE IMPASSABLE IN THE RAINY
SEASON BY ANY VEHICLES.) THE OBSERVERS WOULD
OCCASIONALLY GET OUT OF THEIR VEHICLES, WALK A FEW
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HUNDRED METERS, AND LOOK AROUND WHEN THEY CAME TO A SPOT
WHERE THEY COULD HAVE A PANORAMIC VIEW. PATROLS WOULD
ALWAYS CONSIST OF TWO VEHICLES. THE U.S. POINTED OUT
THAT EVEN IF THE OBSERVERS SPOTTED TRUCKS, THEY WOULD
HAVE NO WAY OF KNOWING WHETHER OR NOT THEY CONTAINED
WEAPONS WITHOUT STOPPING THE TRUCKS AND INSPECTING
THEM. WE LAID OUT OUR CONCERNS THAT THESE OBSERVERS NOT
BE CALLED UPON TO CROSS THE LINE INTO UNDERTAKING POLICE
ACTIONS, AND ALSO THAT THEY WOULD BE AT RISK OF ATTACK
BY DRUG SMUGGLERS AND THIEVES. MOREOVER, ANYONE COULD
ATTACK THE UN OBSERVERS AND THEN BLAME THE RPF. WE
ARGUED THAT UN PATROLS SHOULD ALWAYS BE ACCOMPANIED BY
UGANDAN SOLDIERS, WHO WOULD DO THE ACTUAL INTERDICTION
OF VEHICLES.
7. ALL AGREED THAT THE SECURITY OF THE OBSERVERS WAS
THE RESPONSIBILITY OF THE UGANDANS. HOWEVER, THE FRENCH
WOULD NOT ENDORSE HAVING ALL MOBILE PATROLS ACCOMPANIED
BY UGANDANS, SINCE THEY FEARED ADVANCE WORD OF THE
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"RANDOM" PATROLS WOULD LEAK TO THE RPF AND IT WAS NOT
THE PRACTICE OF THE UN TO UNDERTAKE JOINT MISSIONS.
THEY CONCURRED THAT THE FORCE COMMANDER SHOULD USE HIS
DISCRETION TO NOT PUT HIS MEN IN DANGER. IF HE DEEMED
IT SAFE HE COULD SEND OUT PATROLS ALONG SOME OF THE
"PISTES" FROM TIME TO TIME. IF THEY NOTICED UNUSUAL
TRAFFIC, THEN THE UN COULD ORGANIZE A CHECKPOINT WITH
THE UGANDANS.
UGANDAN ROLE
8. EVENTUAL AGREEMENT WAS REACHED THAT A MEMORANDUM OF
UNDERSTANDING (MOU) AND A STATUS OF FORCES AGREEMENT
(SOFA) BOTH HAD TO BE WORKED OUT WITH THE UGANDANS
BEFORE ANY UN OBSERVERS WOULD BE DEPLOYED. THE MOU
WOULD SPELL OUT THE EXTENT AND TERMS OF UGANDAN
COOPERATION WITH THE UN. THE FRENCH INITIALLY TOOK THE
POSITION THAT THE UGANDANS HAD "CONCEDED" TO THE UN THE
RIGHT TO INSPECT VEHICLES. WE ARGUED THAT THE USUAL
UGANDAN CUSTOMS OR POLICE OFFICIALS SHOULD STOP AND
INSPECT VEHICLES, WITH THE UN OBSERVERS PEERING OVER
THEIR SHOULDERS WHEN NECESSARY. IN THE CASE OF A TRUCK
REFUSING TO STOP, NO CONCLUSIONS COULD BE DRAWN
REGARDING ITS POSSIBLE CARGO. THE MANDATE OF THE UN
MILITARY OBSERVER GROUP WOULD BE TO MONITOR THE
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UNCLASSIFIED
RWANDA/UGANDA BORDER AND VERIFY WHETHER LETHAL WEAPONS
AND AMMUNITION WERE CROSSING ALONG ROADS AND TRACKS THAT
COULD ACCOMMODATE VEHICLES. NO ATTEMPT WOULD BE MADE TO
KEEP TRACK OF ARMS THAT WERE PORTERED THROUGH JUNGLE
PATHS.
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9. THE TWO SIDES AGREED THAT THE UGANDANS NEEDED TO
COOPERATE AND SUPPORT THE MISSION IN ORDER FOR IT TO
WORK. THE UN SECRETARIAT SHOULD NEGOTIATE AN MOU WITH
THE UGANDAN AUTHORITIES, AS WELL AS A SOFA. IF THE
UGANDANS WERE SINCERE, SUCH AGREEMENTS COULD BE WORKED
OUT IN A MATTER OF DAYS. THE U.S. INSISTED THAT THE
AGREEMENTS BE CONCLUDED BEFORE ANY OBSERVERS WERE
DEPLOYED, IN ORDER TO AVOID THE ROADBLOCKS ENCOUNTERED
IN MOZAMBIQUE AND ELSEWHERE. THE FRENCH AGREED.
HELICOPTERS
10. THE FRENCH MAINTAINED THAT HELICOPTERS WERE VITAL
FOR MEDICAL EVACUATION (IF NECESSARY), LOGISTICS AND
COMMAND, AND TRANSPORTATION OF SUPPLIES AND EQUIPMENT.
THE U.S. AGREED HELICOPTERS WERE WARRANTED FOR THESE
FUNCTIONS. REGARDING SURVEILLANCE, THE U.S. POINTED OUT
THAT SEEING A TRUCK FROM THE SKY WOULD NOT HELP IDENTIFY
ITS CONTENTS. THE FRENCH REPLIED THAT THE UGANDANS
COULD BE CALLED IN TO STOP AND INSPECT TRUCKS IF AN
UNUSUAL NUMBER OF THEM WERE
SPOTTED. EVENTUAL
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ACTION 10-19
USUN N 02899 03 OF 03 150004Z
OASY-00 DOEE-00
ARA-01 CIAE-00 C-01
INFO LOG-00 AF-01
TEDE-00 INR-00
H-01
HA-09
EAP-01 EUR-01 E-01
ADS-00 NEA-01 NSAE-00 01C-02 010-04 OMB-01
L-03
SSO-00
SNP-00 SP-00
PRS-01 P-01
PM-02
PA-01
CORE-00 SNIS-00
USIE-00 SA-01
TRSE-00 T-00
SS-00
/054W
NISC-02
CB2554 150005Z /38
0 142331Z JUN 93
FM USMISSION USUN NEW YORK
TO AMEMBASSY PARIS IMMEDIATE
SECSTATE WASHDC IMMEDIATE 7410
INFO AMEMBASSY KIGALI IMMEDIATE
AMEMBASSY DAR ES SALAAM PRIORITY
AMEMBASSY KAMPALA PRIORITY
AMEMBASSY BUJUMBURA
SECDEF WASHDC
USCINCEUR VAIHINGEN GE
UN SECURITY COUNCIL COLLECTIVE
AMEMBASSY NAIROBI
AMEMBASSY BRUSSELS
AMEMBASSY ADDIS ABABA
WHITEHOUSE WASHDC
JOINT STAFF WASHDC
CONFIDENTIALSECTION 03 OF 03 USUN NEW YORK 002899
STATE FOR IO/UNP, AF/C AND AF/RA;
CONFIDENTIAL
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USUN N 02899 03 OF 03 150004Z
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WHITEHOUSE PASS TO NSC;
JOINT STAFF FOR CHAIRMAN, DIR JS, J5
E.0.12356: DECL:6/04/98
TAGS: MARK, PREL, MOPS, UN, RW, UG
SUBJECT: US/FRENCH MEETING ON RWANDAN BORDER FORCE
CONCURRENCE WAS REACHED THAT TASKS BEYOND THOSE
MENTIONED ABOVE, SUCH AS NIGHT FLIGHTS, SURVEILLANCE
MISSIONS, ETC., MIGHT BE UNDERTAKEN FROM TIME TO TIME
AT THE DISCRETION OF THE FORCE COMMANDER, BUT WOULD NOT
BE SPECIFICALLY AUTHORIZED BY THE SECURITY COUNCIL.
WHILE FLYING RESUPPLY AND MEDEVAC MISSIONS, THE
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HELICOPTERS WOULD NOT ONLY BE ABLE TO TAKE NOTE OF
UNUSUAL TRAFFIC, BUT WOULD ALSO PROVIDE A PSYCHOLOGICAL
DETERRENT TO THE PEOPLE ON THE GROUND WHO WOULD NOT KNOW
THE EXACT NATURE AND CAPABILITIES OF THE HELICOPTER
MISSIONS.
UNSC RESOLUTION
11. IT WAS AGREED THAT THE TWO MISSIONS IN NEW YORK
WOULD WORK ON LANGUAGE FOR A UNSC RESOLUTION ALONG THE
FOLLOWING LINES: THE SC WOULD NOTE OR WELCOME, RATHER
THAN APPROVE, THE SYG'S REPORT, IF PRECEDENT FOR SUCH
LANGUAGE COULD BE FOUND. (COMMENT: USUN IS LOOKING
INTO PRECEDENTS IN SOMALIA, MOZAMBIQUE, WESTERN SAHARA
AND ANGOLA RESOLUTIONS. END COMMENT.) PROGRESS REPORTS
WOULD BE MADE BY THE SYG EVERY 6 MONTHS. WE WILL REQUEST
THE SYG TO CONCLUDE A SOFA AND MOU WITH THE GOU BEFORE
THE ARRIVAL OF THE UNOMUR OBSERVERS. THE OBSERVERS
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WOULD BE DISPATCHED WITHIN 15 DAYS OF CONCLUDING
AGREEMENTS WITH THE UGANDANS. WE WILL REQUEST THE SYG
TO REPORT TO THE SECURITY COUNCIL ON IMPLEMENTATION OF
THE FORCE WITHIN 60 DAYS OF DEPLOYMENT OF THE
OBSERVERS. THE MISSION WOULD TERMINATE NO LATER THAN 6
MONTHS AFTER ELECTIONS WERE HELD IN RWANDA. THE UN
WOULD BE CALLED ON TO BEGIN CONTINGENCY PLANNING,
WITHOUT COMMITTING THE UN IN ADVANCE, FOR A POTENTIAL
PEACEKEEPING FORCE TO MONITOR THE ARUSHA PEACE
AGREEMENT, AND TO DETAIL TO THE OAU A UN LOGISTICS
EXPERT TO EXPEDITE DEPLOYMENT OF THE OAU NMOG.
12. COMMENT: IN ORDER TO PREVENT FURTHER MIXED
SIGNALS, THE FRENCH AND U.S. MISSIONS WILL SEEK A JOINT
MEETING WITH THE UN SECRETARIAT AS SOON AS POSSIBLE TO
CONVEY THE THINKING OF THE US AND FRENCH DELEGATIONS ON
THE UN OBSERVER GROUP. AT THAT TIME WE WILL BE SURE THE
U.S. CONCERNS ARE CONVEYED AND THAT THE AGREED CONCEPTS
ARE RELAYED TO THE SECRETARIAT FOR USE IN PLANNING THE
OPERATION. MUCH OF THE DECISIONS OF WHETHER TO OPERATE
CLOSER TO FRENCH OR U.S. CONCEPTS WILL BE LEFT UP TO THE
FORCE COMMANDER. WE SHOULD BE
SURE TO SEEK A MEETING WITH THE EVENTUAL FORCE COMMANDER
BEFORE HE GOES INTO THE FIELD TO REINFORCE OUR
CONCERNS. END COMMENT.
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